Machinery of government and standards in public service: teaching new dogs old tricks

Abstract

For much of the last thirty years the main leitmotif animating Civil Service reform in the UK has been that efficiency and effectiveness in public services can be achieved by adapting management methods and practices derived from commercial enterprise. In the process of making the dreams and schemes of that plural singularity we have come to call ‘managerialism’ operational though, something valuable appears to have been lost, and that something is the Civil Service as a unified ‘constitutional bureaucracy’. In this article I explore some of the unfortunate governmental and administrative consequences of these managerially minded reforms. In particular, I seek to highlight the continuing relevance of what have been routinely characterized as outmoded and anachronistic machineries of government, and to stress the importance of the increasingly forgotten core business of public administration: the running of a state and of a constitution.     

The regulatory state and the UK Labour Government's re‐regulation of provision in the English National Health Service

Following its election in 1997, the UK Labour Government embarked upon a 10 year program of reform of the National Health Service (NHS). By 2005, Labour had doubled the NHS budget and dramatically transformed the shape of the Service. In England, a basic characteristic of the NHS is the organizational split between provider and commissioning agencies. In this article I argue that Labour's re‐regulation of NHS provision is a coherent representation of the influence of the “regulatory state” in restructuring arrangements between government, market, and society. The article offers an account of the regulatory state based on a discussion of five key theses: The Audit Society, Regulation Inside Government, The New Regulatory State, The British Regulatory State, and Regulatory Capitalism. The article unfolds Labour's program of reform across themes common to these accounts: the division of labor between state and society, the division of labor within the state, the formalization of previously informal controls, and the development of meta‐regulatory techniques of enforced self‐regulation. It concludes that the key themes of the regulatory state are at work in Labour's transformation of NHS provision and it offers a discussion of the implications for both scholars of regulation and the UK and European health policy literature.     

Building a More United Kingdom: a Conservative Case for Constitutional Reform1

The United Kingdom faces twin constitutional crises. The existence of the Union itself is now under stronger challenge than ever before, and many of the conventions and understandings which have underpinned the constitutional stability of the United Kingdom and the relationships between executive, Parliament and judiciary have been eroded or overthrown. There is no single, easy way to put things right. What is needed are reforms to the working of Parliament, the Civil Service and devolution, to restore greater balance and stability to our constitution. These should include measures to strengthen the ability of Parliament to hold the executive to account and a new Civil Service Act to provide for the independence, governance and accountability of the Civil Service. To overcome the strains that now threaten the unity of the UK we need a cultural shift in UK politics in favour of partnership and mutual respect, underpinned by changes to the way we do business in both government and Parliament and by greater devolution of power within England.     

The Wisdom of Which Crowd? On the Pathology of a Listening Government

This article considers the claims made by members of the current UK Coalition government to adopt a new style of listening, consultative politics based upon the so‐called wisdom of the crowd. It considers how these claims have—and could have—been acted upon, focusing upon two central policy proposals; the funding of higher education and the reform of the National Health Service.     

British Muslim Political Participation: After Bradford

In this article I argue that there is a significant generational shift within British Pakistani communities in relation to political participation and civic engagement. Using George Galloway's March 2012 by‐election victory in Bradford West and an analysis of primary empirical research conducted amongst British Pakistani communities between 2005–2007, and, 2011, I argue that kinship‐based bloc voting—a feature of British Pakistani political engagement in UK politics—is being challenged. A younger generation of British Pakistanis want politicians to engage with them as individuals rather than politicians assuming their votes through co‐opting Pakistani community elders in a system of patronage politics, an arrangement which has been in place since mass immigration from the subcontinent in the 1950s and 60s.     

Risk and the limits of governance: Exploring varied patterns of risk‐based governance across Europe

Risk‐based approaches to governance are widely promoted as universally applicable foundations for improving the quality, efficiency, and rationality of governance across policy domains. Premised on the idea that governance cannot eliminate all adverse outcomes, these approaches provide a method for establishing priorities and allocating scarce resources, and, in so doing, rationalise the limits of what governance interventions can, and should, achieve. Yet cursory observation suggests that risk‐based approaches have spread unevenly across countries. Based on a comparison of the UK, France, and Germany, this article explores the ways in which, and why, such approaches have “colonised” governance regimes in the UK, but have had much more limited application in France and Germany. We argue that the institutionally patterned adoption of risk‐based governance across these three countries is related to how entrenched governance norms and accountability structures within their national polities handle both the identification and acceptance of adverse governance outcomes.     

Interorganizational Collaborations for Humanitarian Aid: An Analysis of Partnership,Community, and Single Organization Outcomes

Abstract

This article explores collaborative activities across organizational and sectoral boundaries. Interorganizational collaborations are an increasingly common setup to address societal needs; however, current research lacks insights into such collaborations and their outcomes. This study contributes to the existing literature by assessing empirically perceptions of interorganizational collaboration outcomes, considering different dimensions that should be measured when planning and performing tasks of social interest. The article is set in the context of disaster relief, where actors from different humanitarian relief organizations within the public and nonprofit sector engage in collaborative activities. I describe how interorganizational collaborations create outcomes for (1) the partnership structure that is established, (2) single organizational members involved in the collaborative activity, and (3) the community targeted by the interorganizational operation.     

Collaborative Partnerships and Crime in Disorganized Communities

Collaborative partnerships can be an effective strategy for crime prevention, especially in disorganized communities. Using ordinary least squares regression with 414 American cities, this article finds that police departments with many collaborative partnerships are able to promote informal social control within their communities and capitalize on the resources available to them with the help of other groups. This contention is supported by the effects of collaborative partnerships on crime rates in disorganized communities in comparison to well‐organized communities. Thus, collaborative partnerships of public organizations with other groups may insulate disorganized communities from the effects of community disorganization on levels of crime.     

Community‐Based Participatory Research as a Tool for Policy Change: A Case Study of the Southern California Environmental Justice Collaborative

In 2000, a regional rule governing maximum individual cancer risk from stationary facilities in Southern California was dramatically altered, reducing allowable risk levels by 75%. This article uses a case study approach to explore the role of a community‐based participatory research (CBPR) partnership, the Southern California Environmental Justice Collaborative, in producing research and helping spearhead policy advocacy leading to this policy change. It also highlights the role of the collaborative in helping to change the framing of the issue from individual to cumulative risk assessment, so that the regulatory agencies began to reflect this broader thinking in their policymaking. The collaborative's structure and methodology, regional focus, relationships with key decision makers, and its reputation as an important source of both credible science and “people power” were seen as contributing to its effectiveness. The role of contextual factors including a recovering and more regulation‐friendly economy also is highlighted, as are key barriers faced. Implications for other community–academic partnerships working to address regional and statewide public policy are discussed.     

Contextual Factors Influencing Collaboration Levels and Outcomes in National Forest Stewardship Contracting

The number of policies promoting collaborative processes in national forest management has increased considerably over the past decade but do mandates alone increase the levels of collaboration in national forest management? Collaborative governance literature identifies the importance of the situational context for the emergence and performance of collaboration but does not identify the role of specific attributes and processes. This article presents a comparative case‐study analysis of factors influencing levels of collaboration in USDA Forest Service stewardship contracting processes. Incorporating concepts from the collaborative governance literature and Institutional Analysis and Development framework we found policy and administrative guidance alone will not increase the use of collaborative processes associated with stewardship contracts. A combination of existing agency‐community planning efforts, leadership, and agency support were essential for collaboration to materialize. Top‐down policy direction meant to increase the use of collaboration to achieve natural resource management objectives must incorporate opportunities to establish these conditions.     

Brexit Means Brexit—or Does It? The Legacy of Theresa May's Discursive Treatment of Brexit

With the looming reality of Brexit drawing closer, it is the intention of this article to explore Theresa May's post‐referendum communicative behaviour on Brexit—the very issue that came to define her premiership agenda—and uncover what legacy it has left behind. Building upon, extending and updating the emerging literature on May's discourse, the inquiry helps us understand how May acted through language in order to influence and change other people's attitudes towards and ways of looking at Brexit. The article argues that there are at least seven ways, closely interrelated and feeding into each other, in which her discursive construction of Brexit has left a somewhat bitter legacy, contributing to the Brexit political paralysis and inspiring substantial levels of confusion and exasperation, both within the UK and abroad.     

Collaborative Innovation,New Technologies,and Work Redesign

Stakeholders agree on the need to promote innovation in work organization in public services. This article deploys the concept of collaborative innovation to discuss employees' and managers' experiences of a major technology‐driven work redesign project within National Health Service pharmacy services in Scotland. The authors draw on extant literature on New Public Management (NPM) and collaborative approaches to innovation to frame more than 40 in‐depth interviews with managers and employees. They find that key components of collaborative innovation—related to joint problem‐solving, interdisciplinary working, and mutual learning—were important to the success of the redesign project and had positive impacts on job quality for some employees. The authors argue that researchers and policy makers should look beyond NPM‐driven models that have dominated some areas of the public innovation literature to consider the potential added value of collaborative innovation to improving both work and service delivery in the public sector.     

Gender Equity: Illusion or Reality for Women in the Federal Executive Service?

With the passage of the Civil Service Reform Act in 1978, the federal government created the Senior Executive Service (SES) and formally committed the federal government to equal employment opportunity, advocating a “federal service reflective of the nation's diversity.” Since then, women have made dramatic progress in the ranks of the SES. This research probes the following questions: Has women's advancement into the ranks of the SES been illusory or real? Are women simply being appointed to token positions to fulfill affirmative action goals? Or do they contribute to governance from real positions of power and influence? Using data from a recent survey of Senior Executive Service members, this research indicates that male and female members of the SES have almost identical responsibilities and, most interestingly, women executives rate themselves as relatively more influential than do their male colleagues.     

Evidence‐Based Policy‐Making: The Elusive Search for Rational Public Administration

Evidence‐based policy making has been criticised as a revival of the ‘rationality project’ in which democratic politics is regarded as rent‐seeking and a deadweight loss to society. In response, the evidence‐based policy movement has failed to articulate a defence in which the rationality animating the policy process is situational and contextual rather than unique and authoritative. This article traces the movement's motto –‘what works?’– to the American pragmatist movement, whose influence on Harold Lasswell and New Labour in the UK was substantial. This article argues that the ambition for evidence‐based policy‐making should be seen in terms of the transition from a single, unique and universal rationality toward multiple rationalities that vary according to different policy making contexts. Interpreted in such terms, evidence‐based policy making can avoid several of the main criticisms, and offer strong potential to contribute to solving policy problems.     

Interactivity and Branding: Public Political Communication as a Marketing Tool

Online platforms are increasingly used as a means to present brand characteristics to key target groups. Within a political context, websites can act as a shop front from which parties or candidates can advertise their policies and personnel. The increasing use of more interactive forms of communication informs visitors about the overall brand character of the host. This article explores the impact on branding of interactivity by analyzing the online activities undertaken by UK parties and their members elected to the House of Commons during the period 2007 to 2010. Through a process of creating narratives for each of the brands analyzed, based upon a content analysis of the websites and other online presences, this article identifies what characteristics the online shop front is designed to project. This article finds overall that interactivity within online environments is becoming one aspect of the branding of parties, though this is in limited forms and linked more to a marketing communication strategy than seeking to involve or understand site visitors. Members of Parliament who use social networking sites or weblogs, in contrast, have a developed i-branding strategy that enables them to present a strongly interactive brand personality to visitors to their online presences, offering impressions of them as accessible and effective representatives.     

From Participatory Reform to Social Capital: Micro‐Motives and the Macro‐Structure of Civil Society Networks

Although a wide‐ranging literature explores the favorable effects of social capital, it is only relatively recently that systematic attention has been directed to the manner in which social networks emerge and the consequent implications for civic engagement and collaborative governance. This article employs advanced social network statistical models to examine civic network emergence following a participatory reform in Los Angeles. Findings suggest that the reform fostered a number of favorable network attributes supportive of democratic participation. At the same time, subtle but ubiquitous effects of socioeconomic sorting had the unintended and undesirable effect of elevating higher‐status actors within the emergent civic network. These findings suggest that macro‐level policy interventions are required to foster the development of ties that promote cross‐talk among socioeconomically distinct community groups.     

From general training to projeetization: Implications for learning processes and the roles of trainers

A large component of development aid in the past has been in the form of scholarships for officials and managers to attend short and long training programmes in the west. However, it has increasingly been felt that the impact of such programmes is limited, and hence the donor community is placing increased emphasis on ‘projectized’ training programmes, i.e. training that is geared to specific development projects in a particular country. This shift has implications for the nature of the training, the learning processes involved and the roles of trainers. This article explores these issues, firstly reviewing the debate between ‘open’ and ‘projectized’ training, and then going on to report on a case study involving a ‘projectized’ learning event run for the Nigerian Civil Service as part of its Civil Service reform programme. The case study explores the main differences between ‘open’ and ‘projectized’ training, demonstrates some of the potential problems with ‘projectized’ learning and, where appropriate, suggests solutions and offers a number of practical suggestions for trainers to consider for operating in an increasingly ‘projectized’ training scene.     

Enduring Continuity and Endless Change in the British Civil Service

The British Civil Service has often been criticised. The most recent censure was from Ed Straw. In 'The dead generalist', an article for the think tank Demos, he attacked the Civil Service for its unchanging nature and its corresponding failure to meet the challenges of the twenty-first century. Jon Davis's article demonstrates that change is a constant for officialdom, that Mr Straw has some of his facts wrong, and that very similar criticism was made nearly half a century ago, though all the while agreeing that all is not well (and possibly can never be perfect) in Whitehall.     

‘Together in the National Interest’: The Rhetoric of Unity and the Formation of the Cameron–Clegg Government

Following the formation of the Conservative–Liberal Democrat government in May 2010, David Cameron and Nick Clegg sought to persuade party members, the electorate and a sceptical media that their partnership would hold together for the duration of the parliament. Taking as its starting point Kenneth Burke's theory of rhetoric as identification, this article explores the strategies employed by senior Coalition figures to construct and present an image of unity to these different audiences. Of particular concern are appeals to the parties’ shared values and to the ‘national interest’, as well as the narrative of Britain's ‘debt crisis’. This narrative served to minimise inter‐party divisions by inviting MPs and supporters to unite behind the cause of deficit reduction, in opposition to the ‘fiscally irresponsible’ Labour party that had allegedly wrecked the economy. The article concludes by reflecting on the lessons for the partners in a future UK coalition government.     

Governance in the Post‐Soviet Era: Challenges and Opportunities

In the aftermath of the Soviet Union's demise, the countries formerly comprising it embarked on massive reforms to transition from socialist to market‐driven economies. This transition also required substantial transformation of their governance systems. In this Viewpoint essay, the authors reflect on critical reforms in human resource management, ethics management, and anti‐corruption, and highlight successful initiatives in these fields. They also discuss the role of the Astana Civil Service Hub in helping the countries in the region to jointly look for solutions to common governance challenges and to learn from policies and strategies that proved effective for their peers. The authors conclude by identifying the common elements of effective public administration reforms in the post‐Soviet setting.